The root cause of the housing problem in big cities like London is the capitalist system under which housing accommodation is bought and sold. For many years now the housing market has been subject to various controls but neither these, nor council houses, nor subsidies, alter the basic characteristic of housing under capitalism.
Once a city is established as such, the economics of capitalism ensure that the growth of demand for workers assumes a momentum of its own, for the great concentration of people in a city provides a vast market for so-called consumer goods and services. Even in times of depression the drift to the cities continues. But it is in times of full employment that the housing problem becomes acute because in such conditions the rate of growth of employment usually exceeds the rate of growth of housing. Inevitably this creates problems. This basically is what is happening in London today. As the Milner Holland Report puts it:
If the growth of housing does not match the growth o( employment there will be trouble of some kind.
Precisely, and they might have added that, given this basic situation, any measures applied to deal with it can only be palliatives. The Report is in fact a very useful document for exposing the futility of reformism on the housing question, though of course it was not meant to be.
Before going on to look into this, however, it will be useful first to clear up any misunderstanding that the words landlord and rent may create. The source of all Rent, Interest and Profit is the unpaid labour of the working class, using the term Rent to refer to the share of the proceeds of working class exploitation which those who own the land are able to extract from the capitalist class. It does not refer to house-rent which is a different thing altogether. House-rent is not a share of the unpaid labour of the working class but it is a price; in fact the price paid for accommodation.
In the 19th century it was correct to speak of a landlord class distinct and separate from the industrial capitalist class, and indeed between these two classes there was a struggle over taxation and the control of the state. This landlord class was composed of landowners pure and simple. Today the term is also used to refer to those who are engaged in the business of selling accommodation. These two types of landlord should not.be confused; the Labour Party and other demagogues frequently attack “landlords” just as, long ago, John Stuart Mill or Lloyd George tried to dupe the workers into doing the dirty work for the capitalist class in dealing with their enemies, the landowners.
As a matter of fact most of the so-called landlords today are not landowners at all. It is a fact that among the groups which the notorious Rachman swindled were those who owned the land on which his houses stood. The basic point here is this: the worker is exploited at the point of production. He is not exploited anywhere else—and no more by the private landlord from whom he purchases accommodation than by the shopkeeper from whom he purchases the other things he needs. He can be swindled by such people—and the Milner Holland Report does expose some swindles by landlords—but this is a different matter altogether and besides is not confined to working class buyers. The worker is exploited as a producer, not as a buyer.
Further, many members of the working class are themselves technically landlords as the table reproduced from the Report shows.
As can be seen the vast majority of private landlords in London only have up to two or three tenants while sixty per cent have only one tenant. These figures speak for themselves. They suggest that many private landlords are members of the working class letting a room or two to supplement their income from working—a point which should be borne in mind when the demagogues shout about “private landlordism”. It means that measures taken against private landlords in general, while perhaps bettering the position of some members of the working class, hit those others who supplement their wages in this way. This, incidentally, confirms that it is impossible to unite the working class on any reform issue because reform movements are not based on the class interests of the working class as exploited producers. Housing reform movements are no exception.
The Table also shows inequality in the ownership of housing accommodation. This inequality is not as great as might be expected. Another Table in the Report shows that “only about six per cent of all dwellings in Greater London are financed by capital drawn directly from the capital market.” This figure also speaks for itself: investment in private houses for rent is unprofitable. This has various results. The big capitalists stay clear of housing, which is thus left to small capitalists and people like Rachman. The Labour Party went to town over Rachman but they overlooked the fact that he was the product of the policies, such as Rent Control, they had been advocating against private landlords. It was these measures which contributed in no small way to making investment in private housing for rent unprofitable—thus opening the way for the Rachmans!
When the Rent Act of 1957 was being discussed Socialists were invited to oppose it,—in effect to support Rent Control. Besides pointing out that at best Rent Control could only be a palliative, we drew attention to the fact that there was evidence to show that Rent Control gave rise to its own problems, in particular to the neglect and decay of privately owned and rented houses, thus worsening conditions for some workers. In other words it made the situation worse for some in improving it for others. A typical reform. Rent Control is in fact a classic case of the futility of reformism, of running fast to get nowhere. The Milner Holland Report contains many similar examples of much-touted reforms and their miserable results.
On compulsory purchase of sweating landlords by local authorities:
Some authorities expressed the view when giving evidence to us, that compulsory purchase was no way of dealing with this problem. They pointed out that even if a compulsory purchase order was confirmed the owner received the full market value of his house as compensation, inflated in some degree by the very high rents which he was charging. With the proceeds of the compulsory sale he was then able to buy another house and charge the same high rents, thus defeating the whole purpose of the exercise.
Of local authorities refusing to use statutory powers to improve conditions:
. . . statutory powers, though in theory adequate to deal with overcrowding and the worst effects of multiple occupation, are virtually unused in some districts where the problem is most acute. This may be due to the fear that any action taken is likely to result in evictions to relieve overcrowding, to obviate the need for extra facilities, to make room for extra facilities, or simply as a reprisal against tenants whose complaints have prompted action by the local authority. The use of the available powers in a situation of acute shortage therefore tends to improve the situation in terms of dwellings but may shift the people suffering bad conditions into equally unsuitable accommodation elsewhere, or may even make them homeless . . . The choice is between two evils: on the one hand, allowing over-occupation to continue, and on the ether, insisting on improvements which at best cause distress, and at worst result in homelessness.
Of slum clearance making the situation worse:
The progress of slum clearance intensifies the competition for living space, since it must cater for numbers of households substantially larger than the number of dwellings to be demolished, and it may also encourage a further subdivision of existing households into smaller and more numerous units.
Other examples of the futility of reformism which can be gleaned from the Report are: of slum clearance getting nowhere as slums appear faster than they are cleared; of tenants' legal rights as mere scraps of paper for fear of eviction; of concentration on building new houses leading to the neglect of old homes; of tenants refusing improvements because they could not afford the higher rents which would result.
In conditions of shortage it is always the supplier, in this case the private landlord; who has the upper hand. What is happening in London is that in the competition for housing accommodation those who can't pay get the worse. Some don't get anything. At present there are 1,500 homeless families, some 7,000 people, in London and their numbers are growing. These are the lower-paid section of the working class, who have to put up with really bad housing conditions.
It seems likely that the next reform in this field will be a measure to try to improve the position of this section by giving them greater security of tenure or subsidising special housing for them. No doubt this reform too will have its catch: some other section of the working class will find itself worse off. To quote again the passage from the Report: “if the growth of housing docs not match the growth of employment there will be trouble of some kind". The only question is of what kind, and for which section of the working class. The point is, given the basic situation some people must suffer. The politicians are merely arguing about who this should be.
Overcrowding, high rents, homelessness intimidation and the other ills from which many workers suffer are a direct result of fact that demand for accommodation exceeds the supply. In large cities like London this must happen and is likely to be permanent. The Report itself says as much: “the housing problems confronting great cities . . . are of a long term if not permanent character”. The Report also, very appropriately, draws attention to the fact that this problem is not new. They quote from a similar report made by Charles Booth in 1901. Of course since then some housing conditions have improved in many respects but as the Report points out the problem “remains fundamentally the same."
Adam Buick